HIGHER EDUCATION Actions Needed to
Improve Access to Federal Financial Assistance for
Homeless and Foster Youth
May 2016
Ranking Member, Senate Committee on Health, Education, Labor, and Pensions
Why GAO Did This Study
Homeless youth and youth in foster care are often unprepared for the transition to adulthood. Given the economic benefits of college, GAO was asked to examine the college experiences of these vulnerable youth.
GAO examined (1) college enrollment and completion for foster and
homeless youth, (2) the extent to which challenges these youth face affect their ability to pursue college, and (3) the extent to which program barriers hinder these youth from obtaining federal financial assistance for college. GAO analyzed the most recently available Education data—two enrollment data sets, for 2011-2012 and 2013-2014, and data on college completion from 2009; reviewed relevant federal laws and guidance; interviewed officials from Education and HHS, as well as external groups knowledgeable about higher education, foster youth, and homelessness; and held discussion groups with foster and homeless youth.
What GAO Recommends
GAO is making six recommendations to Education and HHS to improve homeless and foster youth access to financial assistance for college, including centralizing college information for these youth on Education’s website, clarifying Education guidance, and considering legislative proposals to simplify federal requirements for homeless and foster youth.HHS agreed with these recommendations while Education generally did not agree or disagree, but described actions it was taking in response to the recommendations.
What GAO Found
Available research suggests that a lower percentage of youth who have been in foster care enroll in and complete college compared to other youth, but little is known about homeless youth. While the Departments of Education (Education) and Health and Human Services (HHS) administer programs that can help them with college, Education data from 2009 (the latest available) indicate that a lower percentage of foster youth complete a bachelor’s degree within 6 years (14 percent) compared to other students (31 percent). Education has begun to collect data on homeless youth and plans to have some college completion information by 2017. Education data also show that homeless and foster youth who attend college pursue an associate’s degree to a greater extent than other students.
Homeless and foster youth experience challenges, such as weak academic foundations, limited family support, and lack of awareness of available financial resources, making it harder for them to pursue college, according to stakeholders GAO interviewed. With few adults in their lives, homeless and foster youth in GAO discussion groups said it is hard to navigate complex college application and financial aid processes. Education officials and other stakeholders told GAO that these youth are often not aware of financial resources for college. Federal law requires Education to provide accessible information on financial aid, but its website has limited information on college resources directed towards homeless and foster youth. The lack of easily accessible and tailored information can make it difficult for these youth to learn about and obtain federal assistance for college.
Burdensome program rules can make it more difficult for unaccompanied homeless youth (those not in the physical custody of a parent or guardian) and older foster youth to obtain federal financial assistance for college.
Homeless youth: Unaccompanied homeless youth are required by law to have their status verified by either an official of specified federal homeless programs or a college financial aid administrator each time they apply for federal grants and loans. Obtaining documentation from specified program officials after the first year of college can be difficult because these programs generally do not serve homeless youth throughout college and because Education guidance on the role of these officials is unclear. Further,
according to Education officials and other stakeholders, financial aid staff are often reluctant to determine that a student is unaccompanied and homeless without making extensive documentation requests, yet homeless youth living in a car or tent can find it difficult to document these tenuous living situations.
Foster youth: Age criteria in federal law can hinder access to an HHS program that provides a voucher for college expenses to foster youth up to age 23, but only if they were receiving the voucher at age 21. Foster youth who start college after age 21 are not eligible for the voucher.
These barriers to accessing financial assistance contribute to the challenges these youth face trying to attend and complete college, but Education and HHS have not developed legislative proposals to address them.
View GAO-16-343. For more information, contact Melissa Emrey-Arras at (617) 788- 0534 or emreyarrasm@gao.gov.
Letter 1
Background 4
Foster Youth Complete College to a Lesser Extent than Other Students, while Little Is Known about College Outcomes for
Homeless Youth 10
Limited Academic Preparation, Family Support, and Awareness of Resources Make It Harder for Homeless and Foster Youth to
Pursue College 19
Burdensome Program Rules Can Hinder the Ability of Homeless
and Foster Youth to Access Federal Supports 30
Conclusions 42
Recommendations for Executive Action 44
Agency Comments and Our Evaluation 45
Appendix I Objectives, Scope, and Methodology 48
Overview 48
Data Sources and Analysis 49
Laws and Policies 51
Review of Studies 51
Interviews with Federal and Selected State Officials and Officials
from Knowledgeable Organizations 52
Discussion Groups with Homeless and Foster Youth 53
Appendix II College Enrollment and Completion of Foster Youth and Unaccompanied Homeless Youth Compared to Dependent
Students 55
Appendix III Comments from the U.S. Department of Education 58
Appendix IV Comments from the U.S. Department of Health and Human
Services 62
Appendix V GAO Contact and Staff Acknowledgments 65
Table
Table 1: Key College Challenges for Homeless and Foster Youth 20
Figures
Figure 1: Federal Student Aid Application Process for
Unaccompanied Homeless Youth 8
Figure 2: Types of Colleges Attended by Foster Youth and All Other Undergraduates, Free Application for Federal
Student Aid Award Year, 2013-2014 12
Figure 3: Comparison of Enrollment of Foster Youth and Other Students in College Degree Programs, by Estimated
Percent of Students Enrolled, School Year 2011-2012 13 Figure 4: Comparison of Estimated College Degree Completion
Rates within 6 Years of First Enrollment, for Foster Youth
and Other Students, as of 2009 15
Figure 5: Types of Colleges Attended by Unaccompanied Homeless Youth and All Other Undergraduates, Free Application for Federal Student Aid Award Year, 2013-
2014 17
Figure 6: Comparison of Degree Program Enrollment for
Unaccompanied Homeless Youth and Other Students, By
Estimated Percent Enrolled, School Year 2011-2012 18 Figure 7: Comparison of Enrollment of Foster Youth to Dependent
Students in College Degree Programs, by Estimated
Percent of Students Enrolled, School Year 2011-2012 55 Figure 8: Comparison of Estimated College Degree Completion
Rates within 6 Years of First Enrollment, for Foster Youth
and Dependent Students, as of 2009 56
Figure 9: Comparison of Degree Program Enrollment for Unaccompanied Homeless Youth and Dependent Students, By Estimated Percent Enrolled, School Year
2011-2012 57
Abbreviations
BPS Beginning Postsecondary Students
Longitudinal Study
Chafee ETV Voucher Chafee Education and Training Voucher Program
COD Common Origination and Disbursement
System
CRS Congressional Research Service
Education Department of Education
FAFSA Free Application for Federal Student Aid
GED General Education Development
HHS Department of Health and Human Services
HUD Department of Housing and Urban Development
NPSAS National Postsecondary Student Aid Study
SPOC Single Point of Contact
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May 19, 2016
The Honorable Patty Murray Ranking Member
Committee on Health, Education, Labor, and Pensions United States Senate
Dear Senator Murray:
An estimated 32,000 unaccompanied youth ages 18 through 24 were homeless on a single night in 2015, and more than 22,000 youth aged out of the foster care system in fiscal year 2014, reaching college age without having the support of relatives or adoptive parents.1 These two vulnerable populations have similar experiences. For example, homeless youth, like youth who have been in foster care, may have experienced parental abuse and neglect. Similarly, youth who are no longer in foster care can end up homeless or without other services. Advocates and others knowledgeable about homeless and foster youth have expressed concerns that these youth lag far behind their peers when it comes to attending and graduating from college. The economic benefits of a college education are well documented—for homeless and foster youth, earning a degree can mean more financial stability when transitioning to adulthood so that they can establish independent, productive lives.
However, to the extent that homeless and foster youth are unable to attend college, they may be unprepared for the transition to adulthood, unable to support themselves, or experience continued homelessness.
The Department of Education (Education) is responsible for administering federal student aid programs—such as Pell Grants and federal loans—
1Numbers of homeless and foster youth were the most recent data available during our review. Information on the number of homeless youth is from the U.S. Department of Housing and Urban Development’s (HUD) 2015 Annual Homeless Assessment Report to Congress. HUD’s point-in-time estimate is for a single night in January 2015 and
represents unaccompanied homeless youth from ages 18 to 24 who were by themselves.
An additional 20,700 homeless youth ages 18-24 were with their families on that date.
Information on the number of youth aging out of foster care is from the U.S. Department of Health and Human Services, Administration on Children, Youth and Families,
Administration for Children and Families, Children’s Bureau, The AFCARS Report, #22, http://www.acf.hhs.gov/sites/default/files/cb/afcarsreport22.pdf. Data on foster youth represents preliminary fiscal year 2014 estimates as of July 2015.
that help low- and middle-income students cover the cost of attending college.2 The Department of Health and Human Services (HHS)
administers the Chafee Education and Training Voucher Program to help older foster youth pay for college and the Runaway and Homeless Youth Transitional Living Program, which funds shelters and services to help homeless youth become self-sufficient, including assistance with college planning.
In light of the economic benefits of college, you asked us to examine the challenges and barriers affecting the ability of foster and homeless youth to pursue a college education.3 Specifically, we analyzed (1) What is known about college enrollment and completion for youth who have been in foster care or who are homeless?(2) To what extent do challenges identified by researchers and stakeholders affect the ability of foster and homeless youth to pursue college? (3) To what extent do program barriers exist that could hinder these youth from obtaining federal financial assistance for college?
For the first objective, we analyzed available data from three federal databases: (1) administrative data from Education’s Common Origination and Disbursement System for 2013-2014, as well as (2) data from the nationally representative National Postsecondary Student Aid Study (NPSAS) for 2011-2012 and (3) the Beginning Postsecondary Students Longitudinal Study (BPS) for 2009. These were the most recent data available for each database at the time of our review. We assessed the reliability of these data by reviewing existing information about the data and the systems that produced them and interviewing agency officials knowledgeable about the data. We determined that the data were
sufficiently reliable for the purposes of this report. To supplement our data analyses, we also reviewed available studies on college enrollment and completion for foster and homeless youth. We assessed the quality of these studies by evaluating the methods used in the research and identifying any limitations. In analyzing college outcomes for homeless youth, we focused on unaccompanied homeless youth—those who are not in the physical custody of their parents or guardians—rather than all
2For this report, we define federal student aid programs as financial aid programs authorized under Title IV of the Higher Education Act of 1965, as amended.
3In this report, we use the term college to refer to a variety of postsecondary programs, including certificate and associate degree programs.
homeless youth because data are available only for this group of homeless students. Available data report on youth who have been in foster care any time since they turned age 13.
For our second and third objectives, we interviewed officials from
Education, HHS, and the Department of Housing and Urban Development (HUD), as well as officials from numerous organizations knowledgeable about child welfare, homelessness, and higher education issues. We also reviewed relevant federal laws and guidance on federal student aid and relevant foster care and homeless youth programs to understand the context for any barriers to program access.4 To obtain information and perspectives on program access for homeless and foster youth, we also interviewed state education and other officials in California, Colorado, Michigan, and Virginia. We selected these states based on several criteria, including the number of foster youth ages 16 to 21 in the state, the number of homeless applicants for federal student aid, and
geographic distribution. We also interviewed college financial aid administrators at three colleges in other states, based on the recommendation of a national organization of financial aid
administrators.5 The views of these state officials and college financial aid administrators are nongeneralizable. Further, we convened two
discussion groups with homeless youth and two discussion groups with foster youth to obtain nongeneralizable information directly from them on any challenges and access issues they faced in enrolling in and
completing college. We assessed Education’s efforts to provide information on federal student aid and access to these programs with related provisions in the Higher Education Act as amended by the College Cost Reduction and Access Act and with Education’s strategic plan and federal standards for internal controls (see app. I for more information on our methodology).
We conducted this performance audit from October 2014 to May 2016 in accordance with generally accepted government auditing standards.
Those standards require that we plan and perform the audit to obtain
4In analyzing program access, we focused primarily on unaccompanied homeless youth because they identify themselves as such when they apply for federal student aid, while homeless youth living with their families are not distinguishable from other students.
5We also interviewed another college financial aid administrator in Michigan who participated in the state interview. The three other financial aid administrators were from colleges located in Maryland, North Carolina, and Ohio.
sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objectives. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objectives.
Education is responsible for administering federal student aid programs that provide grants and loans to students to attend college, managing the application process for these programs, and administering support services for homeless children and youth in elementary and secondary schools.
Education administers federal student aid programs that provided $128.7 billion in assistance to almost 12 million eligible college students and their families in fiscal year 2015.6 The main federal grant and loan programs that Education administers are:
Federal Pell Grant Program: Pell grants are awarded to low-income undergraduate students who have not earned a bachelor’s or a professional degree. These grants do not need to be repaid. Students may be eligible to receive a Pell Grant award for up to the maximum lifetime limit of 12 semesters or their equivalent. The maximum award amount for the 2015-2016 award year is $5,775. In fiscal year 2015, Education distributed $29.9 billion in Pell Grants to eligible low-income students.
William D. Ford Federal Direct Loan Program: To help cover the cost of college, eligible students may receive federal student loans, which must be repaid with interest. For the purposes of federal student aid eligibility, a student is considered to be either financially dependent on his or her parents or financially independent.
Undergraduate students who are independent of their parents may
6Title IV of the Higher Education Act of 1965, as amended, authorizes the federal government’s major student aid programs, which are the primary source of direct federal support to low and middle-income students pursuing postsecondary education. 20 U.S.C.
§ 1070-1099d and 42 U.S.C. §§ 2751-2756b.
Background
Education Programs That Support Homeless and Foster Youth
Federal Student Aid Programs
qualify to borrow up to $9,500 during their first year, while dependent undergraduate students may borrow a maximum of $5,500.
Education also provides support services for homeless children and youth in school up through grade 12.7 The key federal education program for these youth is the McKinney-Vento Education for Homeless Children and Youth Program, which requires all school districts to designate a
McKinney-Vento homeless liaison to help homeless students succeed in school.8 For unaccompanied homeless youth who apply for federal student aid, McKinney-Vento homeless liaisons may verify that a student is an unaccompanied homeless youth. For fiscal year 2015, Congress appropriated about $65 million for Education to administer this program, and about 1.3 million homeless children and youth were served during the 2013-2014 school year, the most recent year for which data are available.
To apply for federal student aid programs, students must submit the Free Application for Federal Student Aid (FAFSA), which asks for financial and other information from the student. Information from the FAFSA
determines whether a student is considered either financially dependent on his or her parents or financially independent for the purpose of
determining federal student aid eligibility. Most college students attending an undergraduate school are considered dependent students and must provide parental income information on the FAFSA.9 If a dependent
7Education also provides support services through several of its Federal TRIO programs to help disadvantaged students (such as low-income and first-generation college students) prepare for and enroll in college. For example, the Student Support Services program aims to improve the undergraduate student retention and graduation rates of its participants by providing support services, such as academic tutoring and assistance in completing college financial aid applications. While foster and homeless youth are eligible for TRIO services, Education does not track the number of homeless and foster youth participating in TRIO programs, according to agency officials.
8Under the Education for Homeless Children and Youth grant program, states and their school districts are required to identify homeless children and provide them with needed services and support. The Education for Homeless Children and Youth Program was initially authorized by Title VII-B of the Stewart B. McKinney Homeless Assistance Act, Pub. L. No. 100-77, 101 Stat. 482, 525 (1987), codified as amended at 42 U.S.C. §§
11431-11435. The Education for Homeless Children and Youth Program was most recently amended and reauthorized by the Every Student Succeeds Act, Pub. L. No. 114- 95, §§ 9101-9107, 129 Stat. 1802, 2124 - 2137 (2015).
9For dependent students, eligibility for the type and amount of federal student aid is based on such factors as the student’s and parents’ income and assets, as well as family size and whether the family has other children enrolled in college. 20 U.S.C. § 1087oo.
Support Services Provided by Education
Applying for Federal Student Aid
student does not provide information on parental income, the FAFSA will be considered incomplete and the student will not be eligible for federal student aid. Certain students—such as those who are married, are veterans, are age 24 and older, or those attending a graduate or professional school—are defined as independent students for the purpose of federal student aid and do not need to provide parental financial information on the FAFSA.10 By law, students who have been in foster care after the age of 13 or who are verified as unaccompanied homeless youth are also considered independent.11 The terms
“unaccompanied youth” and “homeless child and youth” are defined in the McKinney-Vento Homeless Assistance Act.12
The FAFSA asks a series of questions to identify unaccompanied homeless youth. For students who are not already determined to be independent, the online FAFSA asks all students a general screening question about whether they are homeless or self-supporting and at risk
1020 U.S.C. § 1087vv(d)(1). For independent students, eligibility for the type and amount of federal student aid is based on such factors as the student’s and, if married, spouse’s income and assets and whether the student has any dependents other than a spouse, as well as the number of family members enrolled in college. 20 U.S.C. §§ 1087pp and 1087qq.
11Specifically, students who are in foster care or who have been in foster care at any time since they turned 13 years of age are defined in the Higher Education Act as independent students. 20 U.S.C. § 1087vv(d)(1)(B). In addition, students who are verified during the school year in which the FAFSA is submitted as an unaccompanied youth who is a homeless youth or is at risk of homelessness and is self-supporting are defined in the act as independent students. 20 U.S.C. § 1087vv(d)(1)(H). For the purpose of this report, we will refer to these students as homeless youth or unaccompanied homeless youth. In addition, foster youth refers to both current and former foster youth in this report. These categories of individuals were added to the definition of independent students by the College Cost Reduction and Access Act, Pub. L. No. 110-84, § 604(a), 121 Stat. 784, 806 (2007).
12According to the McKinney-Vento Homeless Assistance Act, being homeless means lacking fixed, regular and adequate housing and includes those living in shelters, parks, motels or cars, as well as those temporarily living with other people. 42 U.S.C. § 11434a.
According to the 2016-2017 FAFSA, “homeless means lacking fixed, regular and adequate housing. You may be homeless if you are living in shelters, parks, motels or cars, or temporarily living with other people because you have nowhere else to go. Also, if you are living in any of these situations and fleeing an abusive parent you may be
considered homeless even if your parent would provide support and a place to live.” Being homeless also includes living in a college dormitory if a student would otherwise be homeless, according to Education guidance.
of being homeless.13 Students who answer “yes” to this screening
question must then indicate whether they have been determined to be an unaccompanied homeless youth by a McKinney-Vento homeless liaison or a director of specific programs sponsored by HUD or HHS who are authorized under the Higher Education Act to verify homelessness for student aid purposes.14 If these youth answer “yes” to any of these questions, they are deemed independent.15 Education does not require financial aid administrators to obtain documentation from unaccompanied homeless students to prove their circumstances if they answer yes, unless the college has conflicting information.
Students who do not have determinations of homelessness from these federal programs can still qualify as an unaccompanied homeless youth by contacting a financial aid administrator at each school to which they apply to request an unaccompanied homeless youth determination.16 Education requires financial aid administrators to determine whether these students are unaccompanied homeless youth and therefore
13 For the online FAFSA, unaccompanied homeless youth questions are only presented to applicants who have not been deemed independent by a prior question. For example, students who previously responded that they were married or were veterans would be considered independent and would not see questions about homelessness.
14These include directors of HUD-funded emergency shelters or transitional housing programs or directors of runaway or homeless youth programs funded by HHS. 20 U.S.C.
§ 1087vv(d)(1)(H)(i)-(iii). In addition, financial aid administrators are authorized to verify a student as an unaccompanied homeless youth. 20 U.S.C. § 1087vv(d)(1)(H)(iv). Because Education defines youth as age 21 or under in the FAFSA, unaccompanied homeless youth ages 22 and 23 are not asked these specific follow-up questions in the online FAFSA.
15Education guides homeless and other students through the FAFSA, for example by providing online “help text” to explain technical terms and to help students answer questions most appropriate for their situation. About 99 percent of all applicants use the online version of the FAFSA, according to Education data.
16Although unaccompanied homeless youth ages 22 and 23 do not meet Education’s definition of “youth” in the FAFSA. Education issued guidance in July 2015 instructing financial aid administrators that these students qualify as unaccompanied homeless youth if they otherwise meet the definition. The July guidance on the status of 22- and 23-year old homeless youth was incorporated into Education’s September 2015 Application and Verification Guide.
considered financially independent for federal student aid purposes.17 (See fig. 1 for a description of the full process.)
Figure 1: Federal Student Aid Application Process for Unaccompanied Homeless Youth
Note: For the online FAFSA, the unaccompanied homeless youth screening questions are only presented to online FAFSA applicants who were not deemed independent by a prior question. For example, students who previously responded that they were married, were veterans, were age 24 or older, were attending a graduate or professional school, or had been in foster care, among other things, would be considered independent and would not see questions about homelessness.
17According to the Application and Verification Guide, if a student does not have and cannot obtain documentation from any of the authorities cited on the FAFSA, financial aid administrators must determine if the student is an unaccompanied youth who is homeless or is self-supporting and at risk of being homeless.
HHS provides support services for older foster youth and youth
transitioning out of foster care through the John H. Chafee Foster Care Independence Program and the related Chafee Education and Training Voucher Program (Chafee ETV Voucher Program).18 HHS also provides support services for homeless youth through its Runaway and Homeless Youth Program.
The John H. Chafee Foster Care Independence Program: This program provides funding to states for support services, including employment and educational assistance, to prepare foster youth for adulthood. Foster youth up to age 18 and former foster youth up to age 21 are eligible for this program.19 The program was funded at about $140 million in fiscal year 2015.
Chafee ETV Voucher Program: Youth who qualify for the Chafee Independence Program are eligible for the Chafee ETV Voucher Program, which authorizes funding to states to help eligible foster youth pay for college.20 A youth who has aged out of foster care may be eligible for vouchers worth up to $5,000 annually to help pay for college costs. Eligible youth receiving a voucher before they turn 21
18The federal foster care program, authorized by title IV-E of the Social Security Act as amended, helps to provide safe and stable out-of-home care for children who have experienced abuse or neglect until the children are safely returned home, placed permanently with adoptive families or placed in other planned arrangements for
permanency. HHS also provides additional support services in states that have extended foster care for youth up to age 21. As provided for by the Fostering Connections to Success and Increasing Adoptions Act of 2008, Pub. L. No 110-351, § 201, 122 Stat.
3949, 3957, codified at 42 U.S.C. § 675, states have the option to seek federal reimbursement for part of the cost of providing foster care to eligible youth until age 19, 20, or 21. As of September 2015, HHS had approved plans for 21 states and Washington, D.C. to extend foster care and services up to age 21.
19The program was authorized by the Foster Care Independence Act of 1999, Pub. L. No.
106-169, § 101, 113 Stat. 1822, 1823, codified at 42 U.S.C. § 677.
20The Chafee ETV Voucher Program was authorized by the Promoting Safe and Stable Families Amendments of 2001, Pub. L. No. 107-133, § 201(b), 115 Stat. 2413, 2422, codified at 42 U.S.C. § 677(i).
HHS Programs to Support
Foster and Homeless
Youth
may continue to participate in the program through age 22.21 The program was funded at about $43 million in fiscal year 2015.
Runaway and Homeless Youth/Transitional Living Grant
Program: The Runaway and Homeless Youth Program has several grant programs. The Transitional Living Program provides grants to local entities that provide residential support services to homeless youth ages 16 through 21.22 Grantees are required to provide
homeless youth with safe living accommodations and services to help them prepare for adulthood, including college planning. In fiscal year 2015, the program was funded at about $44 million.23
21States may allow youth participating in the voucher program on the date they turn 21 to continue to participate in the program until they reach 23 years of age as long as they are enrolled and making satisfactory progress in a postsecondary education or training program. 42 U.S.C. § 677(i)(3). Foster youth are generally eligible for both the Chafee Independence Program and the Chafee ETV Voucher Program if they are expected to age out of foster care without being placed in a permanent family or if they left foster care for a permanent placement after age 16. Receipt of a Chafee ETV voucher does not affect foster youths’ eligibility for Pell Grants and other federal aid except that the total amount of educational assistance cannot exceed the total cost of attendance. 42 U.S.C. § 677(i)(5).
22The Transitional Living Program—established as an amendment to The Runaway and Homeless Youth Act in 1988—was most recently reauthorized and amended by the Reconnecting Homeless Youth Act of 2008, Pub. L. No. 110-378, § 4, 122 Stat. 4068, 4069, codified at 42 U.S.C. §§ 5714-1 - 5714-2. Under certain circumstances, a 22- or 23- year-old homeless youth can participate in the program. 42 U.S.C. § 5732a(3)(A)(ii).
23For fiscal year 2015, Congress appropriated $97 million for the Transitional Living Program together with another shorter term program for runaway and homeless youth.
HHS allocated $44 million of these funds to the Transitional Living Program.
Foster Youth
Complete College to
a Lesser Extent than
Other Students, while
Little Is Known about
College Outcomes for
Homeless Youth
Little information is available on the percentage of foster youth who enroll in college. One major three-state study of foster youth in 2011 found a gap in college experience between foster youth and other youth.
Specifically, 40 percent of former foster youth in the study reported completing at least 1 year of college, compared to an estimated 68 percent of youth in the general population.24 According to our analysis of Education administrative data, about 72,000 foster youth received federal student aid in 2013-2014 (less than 1 percent of all undergraduates receiving aid).25 However, this may be an undercount of foster youth because of how the FAFSA collects information from applicants.26
Foster youth who do attend college enrolled at public 2-year colleges to a greater extent than other youth. According to our analysis of Education data, 43 percent of the foster youth who received federal student aid in 2013-2014 attended public 2-year colleges, compared to 29 percent of other undergraduates receiving federal student aid (see fig. 2). Further, based on our analysis of Education’s nationally representative National Postsecondary Student Aid Survey (NPSAS) data from 2011-2012, we estimated that foster youth attended public 2-year colleges at higher
24M. Courtney, A. Dworsky, A. Brown, C. Cary, K. Love, & V. Vorhies, Midwest Evaluation of the Adult Functioning of Former Foster Youth: Outcomes at Age 26 (Chicago, IL:
Chapin Hall at the University of Chicago, 2011). See appendix I for more information on this analysis.
25These data are from Education’s Common Origination and Disbursement System, which contains information on students who receive federal student aid. Data on foster youth come from the “foster care, ward of the court, or orphaned” question on the FAFSA. For FAFSA purposes, a student who was in foster care at any time after they turned age 13 is considered a foster youth. In our report, foster youth refers to both current and former foster youth. Based on data from Education’s nationally representative National Postsecondary Student Aid Survey, we developed an estimate of the total number of foster youth enrolled in college, including those who did not receive federal student aid.
For the 2011-2012 school year, NPSAS estimates that approximately 286,000 foster youth (about 1 percent of all students) were enrolled in college as undergraduates nationwide.
The data on foster youth from NPSAS and the Common Origination and Disbursement system vary due to differences in the data sources, such as the specific student population and timeframes. For more information on our NPSAS analyses, see appendixes I and II.
26Data on foster youth based on FAFSA responses may represent an undercount of foster youth because of how the FAFSA screens applicants to determine whether they are dependent or independent students. Students who are considered financially independent because they are 24 years of age or older, serve or served in the military, or are married, among other things, do not answer the FAFSA questions about whether they were in foster care.
One Study Suggests That
a Lower Percentage of
Foster Youth Attend
College and Education
Data Show Many Attend
Public 2-Year Colleges
percentages (estimated 49 percent) than other low-income youth (41 percent).27 Two studies we reviewed also found that a high percentage of college-enrolled foster youth attended 2-year colleges.28
Figure 2: Types of Colleges Attended by Foster Youth and All Other Undergraduates, Free Application for Federal Student Aid Award Year, 2013-2014
Notes: Figures and subtotals may not add to 100 due to rounding. The non-profit category refers to private non-profit colleges. Data on 2-year colleges also include some certificate programs that are up to 3 years in length.
Consistent with attending 2-year colleges, foster youth who enrolled in college also pursued an associate’s degree to a greater extent than other students. Specifically, an estimated 53 percent of foster youth enrolled in college in 2011-2012 pursued an associate’s degree compared to 48
27All foster youth comparisons from NPSAS are statistically significant at the 95 percent confidence level unless otherwise indicated. NPSAS collects data on a large, nationally representative sample of students and colleges to examine how students and their families pay for college. Data on foster youth comes from the “foster, orphan, and ward of the court” question on the FAFSA. We use low-income students as a comparison group for our analyses of NPSAS data because most foster and homeless youth have incomes within the lowest income quartile of all college-enrolled youth. We defined “low-income” as students in the lowest income quartile for our analyses. All estimates have margins of error within plus or minus 10 percentage points, unless otherwise noted.
28Courtney, et al., Midwest Evaluation; J. Merdinger, A. Hines, K. Osterling, & P. Wyatt,
“Pathways to College for Former Foster Youth: Understanding Factors That Contribute to Educational Success,” Child Welfare, vol. 84, no. 6 (2005).
percent of low-income students, according to our analysis of NPSAS data. Conversely, foster youth pursued a bachelor’s degree to a lesser extent than all other students.29 For example, about 48 percent of all other students enrolled in bachelor’s degree programs, compared to 38 percent of foster youth (see fig. 3).30
Figure 3: Comparison of Enrollment of Foster Youth and Other Students in College Degree Programs, by Estimated Percent of Students Enrolled, School Year 2011-2012
aPercentage estimate is not statistically different from the foster youth estimate at the 95 percent confidence level.
Notes: Percentages may not add to 100 due to rounding. All foster youth comparisons are statistically significant at the 95 percent confidence level, unless otherwise indicated. The percentage estimates for all populations have margins of error of within plus or minus 10 percentage points. We compared foster youth to low-income students because most foster youth have incomes within the lowest income quartile of all college-enrolled youth. The “all other students” category includes all students who are not foster youth, regardless of income level.
29The difference between foster youth and low-income youth enrolled in bachelor’s degree programs was not statistically significant at the 95 percent confidence level, according to our NPSAS analysis.
30We also used dependent students as a comparison group because they are similar in age (under 24) to foster and homeless youth. These results were largely similar to the comparisons of foster youth with low-income youth and all other youth (see app. II).
Available data suggest that a smaller percentage of foster youth who begin college ultimately finish with a degree compared to other students.
According to our analysis of Education’s Beginning Postsecondary Students (BPS) data, a smaller percentage of foster youth who began college for the first time in the 2003-2004 school year (an estimated 14 percent) graduated with a bachelor’s degree as of June 2009—the latest data available at the time of our analysis—than all other students (31 percent).31 Further, BPS data indicate that a high percentage of foster youth who enroll in college do not earn a degree compared to other low- income students. Specifically, 72 percent of foster youth had no degree or certificate within 6 years of first enrolling in college—a far greater
percentage than for low-income students (57 percent), as well as for all other students (49 percent) (see fig. 4).32
31BPS surveys a sample of first-time students at three points in time: at the end of their first year, and then 3 and 6 years after first starting college. It collects data on a variety of topics, including student demographic characteristics, school and work experiences, persistence, transfer, and degree attainment. BPS draws its initial cohorts from the NPSAS data set. We analyzed BPS data for the student cohort that began college in 2003-2004, and compared foster youth to other low-income students and all other students. We also compared foster youth to dependent students because they are similar in age (under 24) to foster and homeless youth. These results were largely similar to the comparisons with low-income youth and all other youth (see app. II). All foster youth comparisons from BPS are statistically significant at the 95 percent confidence level, unless otherwise indicated.
32Some smaller studies involving a few states or schools also indicate that a relatively low percentage of foster youth graduate from college. For example, a study of adults who had been in foster care in the Pacific Northwest found that 43 percent of foster youth who participated in the study received some education beyond high school, but only 2 percent completed a bachelor’s degree or higher. P. Pecora, R. Kessler, K. O’Brien, C. Roller White, J. Williams, M. Herrick, “Educational and Employment Outcomes of Adults Formerly Placed in Foster Care: Results from the Northwest Foster Care Alumni Study,”
Children and Youth Services Review, vol. 28 (2006).
A Lower Percentage of Foster Youth Graduate from College Compared to Other Low-Income
Students
Figure 4: Comparison of Estimated College Degree Completion Rates within 6 Years of First Enrollment, for Foster Youth and Other Students, as of 2009
aPercentage estimate is not statistically different from the foster youth estimate at the 95 percent confidence level.
Notes: Percentages may not add to 100 due to rounding. All foster youth comparisons are statistically significant at the 95 percent confidence level, unless otherwise indicated. All estimates have margins of error of within plus or minus 10 percentage points, with the exception of the foster youth estimates:
The confidence intervals for these estimates are: 58 to 82 percent for no degree, 7 to 26 percent for certificate or associate’s degree, and 6 to 25 percent for bachelor’s degree. We compared foster youth to low-income students because most foster youth have incomes within the lowest income quartile of all college-enrolled youth. The “all other students” category includes all students who are not foster youth, regardless of income level.
Unaccompanied homeless youth have college enrollment patterns similar to those of foster youth, but the percentage of all homeless youth who enroll in college is not generally known, partly due to definitional and other issues that make it difficult to count these youth.33 According to our analysis of Education administrative data, about 15,000 unaccompanied homeless youth received federal student aid in the FAFSA award year 2013-2014 (less than 1 percent of all undergraduates receiving aid).34 Again, this number may represent an undercount because of how FAFSA collects information.35
Like foster youth, unaccompanied homeless youth enrolled at public 2- year colleges to a greater extent than other students. Specifically, Education’s administrative data show that 46 percent of homeless students who received federal student aid in 2013-2014 attended public
33GAO, Homelessness: A Common Vocabulary Could Help Agencies Collaborate and Collect More Consistent Data, GAO-10-702 (Washington, D.C.: June 30, 2010) and GAO, Education of Homeless Students: Improved Program Oversight Needed, GAO-14-465 (Washington, D.C.: July 31, 2014).
34Data on homeless youth are for students who are unaccompanied homeless youth and are considered independent for federal student aid purposes. In analyzing college outcomes for homeless youth, we focused on unaccompanied homeless youth (those who are not in the physical custody of their parents or guardians) rather than all homeless youth because data are available only for unaccompanied homeless youth. Administrative data cited are from Education’s Common Origination and Disbursement System, which contains information on students who receive federal student aid. Further, our analysis of NPSAS data showed that about 21,000 of the approximately 23 million students enrolled in college during the 2011-2012 school year were unaccompanied homeless youth (less than 1 percent of all college students). The data on homeless youth from NPSAS and the Common Origination and Disbursement system vary due to differences in the data sources, such as the specific student population and timeframes.
35Data on unaccompanied homeless youth based on FAFSA responses may represent an undercount of homeless youth because of how FAFSA screens applicants to determine whether they are dependent or independent students. Students who are considered independent because they are 24 years of age or older, served in the military, or are married, among other things, do not answer the FAFSA questions about whether they are unaccompanied homeless youth.
Unaccompanied
Homeless Youth Have College Enrollment
Patterns Similar to Foster
Youth but Little Is Known
about Completion
2-year schools, compared to 30 percent of all other undergraduates receiving federal student aid (see fig. 5).36
Figure 5: Types of Colleges Attended by Unaccompanied Homeless Youth and All Other Undergraduates, Free Application for Federal Student Aid Award Year, 2013-2014
Notes: Figures and subtotals may not add to 100 due to rounding. The non-profit category refers to private non-profit colleges. Data on 2-year colleges also include some certificate programs that are up to 3 years in length.
Like foster youth, unaccompanied homeless youth enrolled in college also pursued an associate’s degree to a greater extent than other students.
Specifically, an estimated 59 percent of unaccompanied homeless youth enrolled in 2011-2012 pursued an associate’s degree program compared to 44 percent of all other students, according to our analysis of NPSAS data.37 Conversely, unaccompanied homeless youth enrolled in a
36All unaccompanied homeless youth comparisons from NPSAS are statistically significant at the 95 percent confidence level unless otherwise indicated. While our analysis of NPSAS data also indicated that a higher percentage of unaccompanied homeless students attended public, two-year colleges than other students, in this instance, the results of this additional analysis were not statistically significant. The small sample size for unaccompanied homeless youth in the NPSAS data may not be sufficient for detecting statistical significance.
37We compared unaccompanied homeless youth to other low-income students and all other students for our NPSAS analyses. We compared low-income students and unaccompanied homeless youth because most unaccompanied homeless youth have incomes within the lowest income quartile of all college-enrolled youth.
bachelor’s degree program to a lesser extent than all other students (see fig. 6).38
Figure 6: Comparison of Degree Program Enrollment for Unaccompanied Homeless Youth and Other Students, By Estimated Percent Enrolled, School Year 2011-2012
aPercentage estimate is not statistically different from the unaccompanied homeless youth estimate at the 95 percent confidence level.
Notes: All unaccompanied homeless youth comparisons are statistically significant at the 95 percent confidence level, unless otherwise indicated. All estimates have margins of error of within plus or minus 10 percentage points, with the exception of the unaccompanied homeless youth estimates for associate’s and bachelor’s degrees: The confidence intervals for these estimates are 45 to 72 percent for associate’s degree and 20 to 47 percent for bachelor’s degree. We compared unaccompanied homeless youth to low-income students because most unaccompanied homeless youth have incomes within the lowest income quartile of all college-enrolled youth. The “all other students”
category includes all students who are not unaccompanied homeless youth, regardless of income level.
While some information is available on the college enrollment patterns of unaccompanied homeless youth, little is known about their completion rates. Our literature review found no rigorous studies on the college graduation rates of homeless youth. In our past work, we found that information on homeless youth can be limited because of data collection challenges such as the stigma associated with homelessness and the existence of multiple federal definitions of homelessness.39 An official at a
38We also compared unaccompanied homeless youth to dependent students because they are similar in age (under 24) to foster and homeless youth. The results were largely similar to the comparisons with low-income youth and all other youth (see app. II).
39GAO-14-465 and GAO-10-702.
national homeless organization said that she was not aware of any colleges or universities that were tracking graduation rates for unaccompanied homeless youth. Further, federal data on college completion for homeless youth are limited because Education did not collect information on homeless youth for either the NPSAS or BPS data sets prior to 2011-2012. However, more should be known about
graduation rates for unaccompanied homeless youth in upcoming years.
In 2011-2012, Education included a question to identify homeless youth for the first time in the BPS. Starting in 2017, when Education will have 6 years of data on homeless youth attending college, it will be possible to begin assessing college completion rates for unaccompanied homeless youth.40
From elementary school through high school, many homeless and foster youth face common challenges that can leave them unprepared and ill- equipped for college, according to stakeholders we interviewed and studies and reports we reviewed (see table 1 for a summary of these challenges). Many homeless and foster youth have weak academic foundations for college because of their frequent moves from school to school. They also typically have few supportive family members or other adults they can turn to for help and advice about how to apply for, enroll, and stay in college. Lastly, because they typically have low incomes, their financial resources for college are limited. These challenges can also be exacerbated by the extent to which homeless and foster youth lack awareness about federal financial resources that are available to help them pursue a college education.
40The current student cohort for the BPS began college in 2012, was surveyed in 2014, and will be contacted again in 2017.
Limited Academic Preparation, Family Support, and
Awareness of
Resources Make It
Harder for Homeless
and Foster Youth to
Pursue College
Table 1: Key College Challenges for Homeless and Foster Youth
Source: GAO analysis of challenges and effects based on stakeholder views and reports and studies we reviewed. | GAO-16-343
While many homeless and foster youth deal with academic issues associated with other low-income and disadvantaged students, these youth can experience additional academic and other challenges that can hinder their ability to attend and succeed in college. For many homeless and foster youth, their early academic development is often disrupted by frequent changes in living arrangements and subsequent transitions into different schools. As we have previously reported, research suggests that student mobility has a negative effect on students’ academic
achievement.41 Specifically, research has found that students who changed schools more frequently than other students tended to have lower scores on standardized reading and math tests and drop out of school at higher rates than their less mobile peers. Many homeless and foster youth change schools multiple times, according to officials from foster care and homelessness organizations we interviewed. A study we reviewed of more than 650 former foster youth indicated that 65 percent had changed schools seven or more times from elementary through high
41GAO, K-12 Education: Many Challenges Arise in Educating Students Who Change Schools Frequently, GAO-11-40 (Washington, D.C.: Nov 18, 2010).
Common characteristics of homeless and foster youth
Effect on college enrollment
Effect on college
persistence and attainment Academic preparation
Frequent school changes lead to lower academic performance
Take few or no college preparation courses
Difficulty meeting college admissions requirements
Unprepared for college-level courses (stuck in remedial classes)
Family supports
Lack strong family support systems or other adult mentors
Less access to high school counselors and college advisors
Difficulty navigating complex college application and financial aid processes
Lack emotional support Lack adult mentors
Financial
Predominately from low- income backgrounds
Financial aid does not fully cover students’
needs
Trouble balancing financial obligations of school and life Lack of stable housing
Weak Academic
Foundations Can Hinder
College Progress and
Success
school.42 Similarly, a homeless youth in one of our discussion groups said she and her family had lived out of a car in 11 different states, and she often spent just a few weeks or months at each new school. Frequent school changes can be disruptive for students’ academic progress because they must adjust to new curriculums, classmates, and teachers.
The lack of sufficient academic preparation can make it difficult for some homeless and foster youth to qualify for college enrollment. College admission standards generally require students to have completed a high school degree or a recognized equivalent; however, homeless and foster youth generally have lower rates of high school completion than their peers, according to federal officials and studies we reviewed. For example, Education officials told us that available data from states
indicate that a lower percentage of homeless students graduate from high school compared to non-homeless students. Foster and homeless youth also tend to be absent from classes more than other students, which impedes their academic progress.43 In addition, homeless and foster youth who do graduate from high school may not have sufficient grades or may not have taken the necessary college preparatory courses to meet college admissions standards. For example, a homeless youth in one of our discussion groups said her high school grade point average was not high enough to be accepted into college. Similarly, many homeless youth acquire a General Education Development (GED) credential rather than a high school diploma, which HHS officials said can make it more difficult to get into college.
Weak academic foundations can continue to hinder these students when they are enrolled in college. Many homeless and foster youth are not sufficiently prepared for college-level classes, so they must enroll in remedial education courses during their first year in college, according to federal and state officials we interviewed. A foster youth in one of our discussion groups said she was not academically prepared for college so she had to take remedial English and other summer classes to catch up.
As we have previously reported, students in remedial education have
42P.J. Pecora, et al., “Results from the Northwest Foster Care Alumni Study.”
43Thomas R. Wolanin, Higher Education Opportunities for Foster Youth: A Primer for Policy Makers, The Institute for Higher Education Policy (Washington, D.C.: December 2005), and National Center for Homeless Education, Best Practices in Homeless Education: Increasing Access to Higher Education for Unaccompanied Homeless Youth:
Information for Colleges and Universities (Washington, D.C.).
relatively low chances of completing their degrees or certificates within 8 years.44 Education officials also said these students are using portions of their available student aid on remedial classes, which do not count toward a degree.45 The cumulative effect of these academic challenges can make it more difficult for homeless and foster youth to achieve successful college outcomes.
Without the support of family members or mentors, homeless youth and youth in foster care may lack the impetus to pursue college or the knowledge to navigate the complex enrollment process. Homeless and foster youth may be less inclined to think of college as a viable option when they do not have relationships with supportive adults to convey the value of education or provide models of academic success, according to several reports and a homeless organization we interviewed.46 A college financial aid administrator we interviewed told us that lack of
encouragement and support from a caring adult and the generally low expectations of homeless and foster youth keep these students from applying to college. In addition, homeless and foster youth often lack the support of knowledgeable adults to help guide them through the complex processes of applying to and selecting a college, according to several officials from foster care and homelessness organizations we interviewed.
As a result, homeless and foster youth who are interested in going to college often do not know how to start the process and lack information on different types of colleges and programs, according to federal and state officials we interviewed, as well as officials from foster care and homelessness organizations. For example, a representative for college admission counselors explained that it can be extremely challenging for homeless and foster youth to complete the numerous college admission requirements on their own, such as signing up for college admissions tests and completing the FAFSA.
44GAO, Community Colleges: New Federal Research Center May Enhance Current Understanding of Developmental Education, GAO-13-656 (Washington, D.C.: September 2013).
45Students are eligible to receive Pell Grants for up to 12 semesters.
46Wolanin, Higher Education Opportunities for Foster Youth: A Primer for Policy Makers;
A. Dworsky and A. Pérez, Helping former foster youth graduate from college: Campus support programs in California and Washington State. (Chicago: Chapin Hall at the University of Chicago, 2009).
Limited Family Support
Can Make It Difficult to
Enroll in and Succeed in
College
Although many foster and homeless youth can turn to certain
professionals to help them with college applications and planning, these professionals may not have the time or knowledge to provide the full extent of college guidance that some homeless and foster youth need, according to relevant reports we reviewed and interviews with officials from higher education organizations. High school counselors are often tasked with many responsibilities in addition to college counseling, and also have high caseloads, especially those who serve low-income students.47 McKinney-Vento homeless liaisons in particular are often more focused on helping homeless students with fundamental needs, such as obtaining food and shelter and staying in high school, rather than helping them apply to college, according to Education officials and federal researchers we interviewed. Similarly, child welfare caseworkers are often more focused on helping foster youth transition to independence as they age out of the foster care system, according to foster care experts we interviewed.
Further, according to federal and other officials, some of these professionals are not fully aware of federal student aid or college
application processes because these are not their areas of expertise. Yet child welfare systems are required to help youth aging out of foster care prepare to transition to adulthood, and this transition means going to college for many young people.48 Similarly, under the McKinney-Vento Homeless Assistance Act, school districts are required to coordinate with social services agencies and other programs to help meet homeless
47School counselors’ responsibilities also include administrative duties (monitoring special education compliance), academic counseling (ensuring students are taking the right courses, counseling struggling students), and even social work (addressing student discipline and mental health issues). According to the National Association of College Admission Counseling, public high school counselors spend only about a quarter of their time on college admission counseling. M. Clindinst, et al., State of College Admission 2012: National Association of College Admission Counseling. Further, although the American School Counselors Association recommends a student-to-counselor ratio of 250:1, the ratio for counselors serving low-income students averages 1,000:1, according to a survey by the National Association of College Admission Counseling.
48State child welfare agencies are required to help youth aging out of foster care to develop a transition plan that must be implemented during a 90-day period prior to a youth’s 18th birthday (or up to a youth’s 21st birthday in states that offer extended foster care). The plan is to be directed by the youth and must include specific options on education, housing, and other matters. 42 U.S.C. § 675(5)(H).
